EXECUTIVE SUMMARY 2004 Team Member WorldBank Teacher Employment and Deployment in Indonesia

2 Teacher Employment and Deployment In Indonesia 1. Uneven distribution of teachers: The district data show that there are marked inequities in the deployment of teachers both across schools and districts. Some 68 of urban and 52 of rural primary schools have an excess of teachers, while 66 of remote schools have a deficit. The imbalance between urban and remote areas is not as marked in junior secondary schools. Overall, some 81 of junior secondary schools have an excess, while 13 have a deficit. 2 There are also reported mismatches in regard to subject needs in schools compared with teacher expertise, particularly in English, sport and religion. Notwithstanding the question of excess and deficit of teachers in schools point 4 below, it is clear that there is an uneven distribution of teachers across both schools and districts. 2. Inequities for remote schools: The district data indicate that there are acute shortages of staff in the majority of remote schools, with 93 claiming that they had a deficit. 3 Although there is a requirement for teachers, as civil servants, to serve where they are posted, the policy is clearly not being consistently implemented. As a result of the deficits in the remote areas, some teachers have excessive workloads. These factors ultimately have an adverse impact the students. The deficit of teachers in remote areas has been explained in terms of resistance to postings in such areas due to lack of adequate housing; poor transport; domestic responsibilities; concerns about the isolation from family and friends; and the generally poor services and facilities in remote areas. 3. Teachers’ Low Workloads: There is great variation in the actual workloads of teachers. The district data show that almost half the primary teachers were reported to have a workload of less than the minimum of 18 hours per week. Amongst junior secondary teachers, some 44 work less than 18 hours. 4 A major factor contributing to workload inequities is that specialist teachers, particularly those teaching sport and religious studies in smaller primary schools, may not have enough classes for a full teaching load. Similarly, most junior secondary teachers teach only one subject, which restricts flexibility in staff allocation and increases staffing requirements. 4. Excessive Staffing Levels: National educational policy stipulates that, after a school is given its minimum teacher entitlement, a student-teacher ratio STR in primary schools of 40:1 and in junior secondary schools of 28:1 is to be applied. These ratios are unrealistically high and are well in excess of comparable international STRs. In fact, the actual ratios found in Indonesian schools indicate that the policy is not being applied. The survey sample data show that the actual STR is 19.0 for primary schools and 15.6 for junior secondary schools. 5 Available national data show ratios of 21:1 for primary schools and 14:1 for junior secondary schools. 6 By comparison, the average STR amongst AsiaPacific countries is approximately 31:1 for primary schools and 25:1 for junior secondary schools. 7 Given the relatively low STRs and the relatively low workload noted above, it is reasonable to conclude that actual staffing levels in Indonesian primary and junior secondary schools are excessive. 2 Teacher Employment and Deployment survey, 2005 3 Ibid 4 Ibid 5 Ibid 6 MoNE data from Balitbang, 2004 7 Edstats online query database; note that the results for Indonesia in the Edstats database are in fact similar to the national data from Balitbang, so comparison of Indonesia data to international data appears valid. Opportunities for Equity, Efficiency and Quality Improvement 3 5. Low Remuneration: It is generally acknowledged that teacher salaries are low compared with other civil servants with similar qualifications. Allowances paid to teachers vary greatly, depending on local circumstances. The field data show that only 36 of primary teachers and 52 of junior secondary teachers receive district allowances. Only 14 of primary teachers and 45 of junior secondary teachers receive a school level incentive. Unsurprisingly, inequities are most apparent in districts andor school communities that do not have sufficient financial resources to pay allowances, rather than in better off district andor communities. Anecdotal evidence suggests that the generally low level of remuneration affects teacher motivation, attendance, and performance, and that it is not uncommon for teachers to take a second job to make ends meet. The new Teacher Law is designed to address issues of remuneration, but in the context of quality where teachers are also expected to improve their skills and qualifications and meet minimum working hours in order to receive the remuneration. As increases in allowances will have significant nation-wide budgetary implications, the importance of efficiencies in teacher management have become even more critical. 6. The Quality of Teachers: Although the sample field study did not focus on the collection of specific data on the quality of teaching and learning nor on teacher competencies, these issues were raised extensively at the workshop to discuss the survey results. Apart from the generally low level of quality inputs e.g. textbooks and teachinglearning materials, the factors above probably result in sub-optimal performance on the part of both teachers and students. The Teacher Law is partly intended to address issues related to teacher qualifications and certification, linking these to remuneration. Policy Recommendations Based on the findings of the Study, a total of 42 policies have been formulated. To address the six major issues summarized above. The reform of systems of teacher employment and deployment should be based on the following two broad policy thrusts: ƒ Introducing system-wide equity in resource allocation by moving to a students – per - teacher school staffing entitlement and in so doing improving efficiency; and ƒ Implementing policies that deploy teachers according to school needs, to improve equity, access and quality of education. For ease of reference and follow-up, the recommendations have been grouped to align with likely administrative responsibilities: ƒ Teacher recruitment, appointment, salaries and allowances; ƒ Classification of schools, ƒ Teacher posting, transfer and attendance; ƒ Teacher progression and promotion; ƒ Staffing of schools, ƒ Class size, including multigrade classes; ƒ Teaching workload; ƒ Teaching subjects; ƒ Student-staff ratios; ƒ Teacher housing in remote areas; and ƒ School mergers. It is envisaged that through implementation of the recommended policies, Indonesia’s education system will achieve a more equitable and efficient distribution, which will improve both access and 4 Teacher Employment and Deployment In Indonesia quality while also achieving significant financial savings. This study estimates that current teaching levels are 21 above optimal levels and that improved efficiencies could result in savings in salary costs in the vicinity of 5.8 trillion Rupiah per annum. 8 In order for policies to be implemented effectively, all interested parties must be aware of and take into account the context and realities of the situation. Feasibility issues and activities relating to implementing the recommended policies from a government perspective include: ƒ Status of current policies; ƒ Governance provisions; ƒ Organization and management structures; ƒ Capacity and systems; ƒ Service in remote schools; ƒ Teacher demand and supply; ƒ Potential for corruption; and ƒ Required resources. In recognition of the magnitude of the challenges involved in reforming systems of teacher employment and deployment nation-wide, the report has identifies a suite 25 of the recommended polices for trial in a number of selected districts. Conclusion The importance of addressing the issues related to the employment and deployment of teachers cannot be overstated. The proposed initiatives have significant implications for improving equity and efficiency and are vital for achieving improved access to and an improved quality of Indonesia’s school system. 8 Study team estimates. See Section 0 for calculations Opportunities for Equity, Efficiency and Quality Improvement 5

2. CONTEXT OF THE STUDY

Developing a highly qualified, efficiently distributed teacher workforce is essential for the achievement of an effective education system. Effective management of the teaching force can lead to positive outcomes for both teachers and, ultimately, for students. The morale and commitment of teachers depends to a large extent on the ways in which their recruitment, initial training, posting, in-service training, transfer, promotion, appraisal, professional and administrative supervision are managed. A number of reports and studies indicate that the quality of education in Indonesia is low and possibly even declining and that teacher quality in particular is a major concern. The Education Sector Review June 2005, and a recent study of teacher salaries Education PER, 2005 reveal serious deficiencies in the performance of teachers on competency tests in subject fields. Teacher absenteeism rates around 19, moonlighting, and the relatively low salaries of teachers, especially at the secondary level, compared to other Indonesians with comparable qualifications and to international standards are matters of major concern. In particular, these factors contribute to poor student performance, high pupil dropout and repetition rates, and widespread public complaints. Recognizing the central importance of teachers in the system, in 2004, the Government of Indonesia GOI established the new Directorate General for Quality Improvement of Teacher and Education Personnel [the Direktorat Jenderal Peningkatan Mutu Pendidik dan Tenaga Kependidikan PMPTKQITEP] within the Ministry of National Education MoNE. The mission of this new Directorate General is to ensure that teachers, particularly, and educational personnel, in general, have the appropriate academic qualifications and standards of competency and receive appropriate remuneration and associated benefits. The New Teacher Law December 2005 A new Teacher Law was passed by the national level government in December 2005. In part, the Law and related Regulations are intended to improve the quality of the workforce and to recognize the competencies and qualifications of teachers through a series of professional and location incentives. These incentives should encourage teachers to upgrade their qualifications and also to encourage them to serve in remote or less desirable locations. The new Teacher Law touches on a number of issues related to the employment and deployment of teachers. However, other matters that have a significant impact on the quality and cost effectiveness of and the degree of access to educational services in Indonesia require separate detailed studies and proposals for reform. Employment and deployment issues form the basis of this study. With the support of the World Bank, and with financial assistance from AusAID and the Netherlands Government, the Directorate General PMPTK initiated a study involving 12 districtsmunicipalities in Indonesia. The study aimed to investigate issues related to the employment and deployment of teachers in terms of both policies and practices at primary and junior secondary schools. The major issues covered included the following: ƒ distribution of teachers; ƒ staffing of remote schools; ƒ student-teacher ratios and teacher workloads; ƒ the overall supply of teachers; 6 Teacher Employment and Deployment In Indonesia ƒ teacher remuneration; and ƒ teacher quality. A participative approach to the study was chosen for several reasons. A study across 12 districts has the advantage not only of obtaining first hand, accurate data from the field, but can also build on local knowledge and insights into issues related to the employment and deployment of teachers facing educational administrators at the school and district levels. District representatives included high level education officials from MoNE, civil service officials and university personnel – three sectors that are each critical in their own right to the design of sound policy reform. The partnership with university personnel added to the intellectual rigor of the study and also gave the universities an opportunity to focus on practical issues. The involvement of civil service personnel provided a valuable wider perspective.